Recommended Minimum Technical Requirements to Ensure Nationwide Interoperability for the Nationwide Public Safety Broadband Network
Prepared by:
Technical Advisory Board for First Responder Interoperability
Final Report
May 22, 2012
Contents
1Executive Summary
1.1Introduction
1.2Purpose
1.3Recommended Requirements Summary
1.3.13GPP LTE Standards, Interfaces and Guidelines
1.3.2User Equipment and Device Management
1.3.3Testing
1.3.4Evolution
1.3.5Handover and Mobility
1.3.6Prioritization and Quality of Service
1.3.7Security
1.4Recommended Considerations Summary
1.4.13GPP LTE Standards, Interfaces and Guidelines
1.4.2User Equipment and Device Management
1.4.3Testing
1.4.4Evolution
1.4.5Handover and Mobility
1.4.6Grade of Service
1.4.7Prioritization and Quality of Service
1.4.8Security
2Introduction
2.1Statutory Framework for Deployment of a Nationwide Interoperable Public Safety Broadband Network
2.2Technical Advisory Board for First Responder Interoperability
2.2.1Interoperability Board Membership
3Objective, Scope, and Methodology
3.1Objective
3.2Scope
3.3Methodology
3.3.1Assumptions
3.3.2Public Safety Requirements and LTE Standards
3.3.3Document Structure
4Recommendations
4.13GPP LTE Standards, Interfaces and Guidelines
4.1.1Interoperability Assumptions
4.1.2NPSBN Landscape Diagram
4.1.3Mapping to 3GPP LTE Reference Architecture
4.1.4Existing Infrastructure Integration Scenarios
4.1.4.1Interim Existing Infrastructure Assumptions
4.1.4.2Configuration 1 – Leverage User Plane and Signaling Plane Elements of the Existing Infrastructure Networks
4.1.4.3Configuration 2 – Leverage User Plane Elements of the Existing Networks
4.1.4.4Configuration 3 – Leverage User Plane, Signaling Plane, and HSS Elements of the Existing Networks
4.1.4.5Existing Infrastructure Integration Considerations
4.1.5Interoperable Network Elements
4.1.5.1Device or UE
4.1.5.2NPSBN RAN
4.1.5.3Opt-out RAN
4.1.5.4Existing RAN
4.1.5.5Public Safety Application Network (PSAN)
4.1.5.6Emergency Services IP Network (ESI Net)
4.1.5.7NPSBN Core Network
4.1.5.8Nationwide Public Safety Applications Network (NPSAN)
4.1.5.9Public Internet
4.1.5.10Public Switched Telephone Network
4.1.5.11Commercial Networks
4.1.5.12Roaming Exchange Networks
4.1.5.13NPSBN IMS Network
4.1.6Reference Point Descriptions
4.1.6.1Ref 1 - Reference point between Device and RANs
4.1.6.2Ref 2 – Reference point between NPSBN Core and RANs
4.1.6.3Ref 3 – Reference point between RANs and Commercial/PPP Networks
4.1.6.4Ref 4 – Reference point between NPSBN Core and Device
4.1.6.5Ref 5 – Reference point between NPSBN core and IPX, DCH, and FCH service providers
4.1.6.6Ref 6 - Reference point between Public Safety Application Networks (PSANs) and NPSBN Core or Existing Cores
4.1.6.7Ref 7 - Reference point between Nationwide Public Safety Application Network (NPSAN) and NPSBN Core or Existing Cores
4.1.6.8Ref 8 - Reference point between NPSBN Core and Public Internet
4.1.6.9Ref 9 - Reference point between Nationwide Public Safety Application Network and ESI Net
4.1.6.10Ref 10 - Reference point between ESI Net and Public Internet
4.1.6.11Ref 11 - Reference point between NPSBN IMS Network and Public Switched Telephone Network
4.1.6.12Ref 12 - Reference point between ESI Net and PSTN
4.1.6.13Ref 13 - Reference point between ESI Net and Commercial or PPP networks
4.1.6.14Ref 14 – Reference point between Device Applications and Application Managers
4.1.6.15Ref 15 - Reference point between NPSBN Core and Existing Core
4.1.6.16Ref 16 - Reference point between E-UTRANs
4.1.6.17Ref 17 - Reference point between NPSBN IMS Network and NPSBN Core or Existing Cores
4.1.7Minimum Required Interoperable Interfaces and Standards
4.1.8Recommended Requirements for Interface Interoperability
4.1.9NPSBN Services Offered to Applications
4.1.9.1Billing Capability
4.1.9.2Location Based Data Capability
4.1.10Network Applications
4.1.10.1Recommended Minimum Requirements
4.1.11Additional Recommended Reference Points and Standards
4.2User Equipment and Device Management
4.2.1User Equipment
4.2.1.1Standards
4.2.1.2USIM/UICC
4.2.1.3Roaming
4.2.1.4Public Safety Specific Device Performance
4.2.1.5Future Readiness
4.2.2Device Management
4.2.2.1Overview
4.2.2.2Standards
4.2.2.3Application Management
4.2.3Subscriber Provisioning
4.3Testing
4.3.1Testing Overview
4.3.2Device Testing
4.3.2.1Device Conformance Tests
4.3.2.2Device Interoperability Tests
4.3.2.3Device System Tests
4.3.2.4Device Ancillary Function Tests
4.3.2.5Requirements for Device and Device Management Testing
4.3.2.6Device Test Life Cycle
4.3.3Infrastructure Testing
4.3.3.1Infrastructure Interface Conformance Tests
4.3.3.2Infrastructure Interoperability Tests
4.3.3.3Infrastructure Performance Tests
4.3.3.4Recommendations for Infrastructure Testing
4.3.3.5Network & Network Elements Test Life Cycle
4.3.4Nationwide Application Testing
4.3.4.1Recommendations for Nationwide Application Testing
4.3.5System Level Testing
4.3.5.1Recommended Requirements for First Office Application Testing
4.4Evolution
4.4.1Overview
4.4.2Evolution Scope
4.4.3Future Applications and Network Services
4.4.3.1Interoperability with Land Mobile Radio Systems
4.4.3.2One-to-Many Communications across All Media – Future Requirement
4.4.4Evolution of LTE
4.4.5Roadmap
4.4.6Evolution Framework
4.4.6.1Commercial Technology
4.4.6.2Compatibility
4.4.6.3NG 911 Services
4.4.6.4Coverage
4.4.6.5Capacity
4.4.6.6Resiliency
4.5Handover and Mobility
4.5.1Definitions
4.5.2Handover
4.5.2.1Handover between cells in the NPSBN served by the same MME
4.5.2.2Handover between Cells in the NPSBN Served by Different MMEs
4.5.2.3Handover between Band 14 Networks with Different PLMNs
4.5.3Roaming from NPSBN onto Commercial Mobile Networks
4.5.3.1Roaming Without Service Continuity
4.5.3.2Use of Mobile VPN Technology to Provide Session Persistence when Users Roam
4.6Grade of Service
4.6.1Coverage Area
4.6.2GoS Tiers
4.6.3GoS Attributes
4.6.3.1Service Probability
4.6.3.2Data Rates
4.6.3.3Usage Models
4.6.4RAN Boundaries & Coordination
4.7Prioritization and Quality of Service
4.7.1Profiles: Default Values
4.7.2Profiles: Dynamic modification
4.7.3QoS Class Identifiers (QCIs)
4.7.4Preemption
4.7.5Access Class
4.7.6IP Network Priority
4.7.7(M)VPN Priority and QoS
4.8Security
4.8.1Definitions
4.8.2Cyber Security Evolution and Mitigation Strategies
4.8.33GPP Security Baseline
4.8.3.1Network Access Security
4.8.3.2Network Domain Security
4.8.3.3User Domain Security
4.8.3.4Application Domain Security
4.8.3.5Visibility and Configurability of Security
4.8.4Support for Jurisdictional Security Policies
4.8.5Roaming
4.8.6Identity Management and Identity Federation
5Conclusions
Appendix 1: Public Safety Emergency Services
Responder Emergency
Immediate Peril
Incident Command System Incident Priority
Jurisdictional Priority
Appendix 2: Trusted Delivery Process
Appendix 3: Supporting Agencies and Individuals
Appendix 4: List of Acronyms
List of Tables
Table 1: Minimum Interoperable Interfaces
Table 2: Standards Implementation Methodology
Table 3: Reference Points and Standards
Table 4: QoS Class Identifiers (Excerpted from table 6.1.7 of 3GPP 23.203 V9.11)
List of Figures
Figure 1: Public Safety Requirements and Standards
Figure 2: NPSBN Landscape Model
Figure 3: 3GPP LTE Reference Architecture
Figure 4: NPSBN – Interim Infrastructure Landscape Model
Figure 5: Testing Regimen
Figure 6: Testing Life Cycle
Figure 7: Network Evolution Planning
Figure 8: LTE Handover Mechanisms
Figure 9: Intra-MME Handover
Figure 10: Inter-MME Handover
Figure 11: Roaming Using Home-Routed APN
Figure 12: Roaming Using Local Breakout APN
Figure 13: Security Domains
Figure 14: LTE Security Architecture
Figure 15: Network Access Security Protocols
Figure 16: Intra-Domain and Inter-Domain Illustration
1Executive Summary
1.1Introduction
This report fulfills the statutory reporting requirements of the Technical Advisory Board for First Responder Interoperability pursuant to Title VI – “Public Safety Communications and Electromagnetic Spectrum Auctions” of the Middle Class Tax Relief and Job Creation Act of 2012 (Spectrum Act).[1] Pursuant to the Spectrum Act, the Federal Communications Commission (FCC) established the Technical Advisory Board for First Responder Interoperability (Interoperability Board). The duties of the Interoperability Board, in consultation with the NTIA, NIST, and the Office of Emergency Communications of the Department of Homeland Security, are twofold:
(A)Develop recommended minimum technical requirements to ensure a nationwide level of interoperability for the Nationwide Public Safety Broadband Network (NPSBN); and
(B)Submit to the Commission [FCC] for review
In fulfillment of these duties, this report presents recommendations in the following areas:
- 3GPP LTE Standards, Interfaces and Guidelines
- User Equipment and Device Management
- Testing
- Evolution
- Handover and Mobility
- Grade of Service
- Prioritization and Quality of Service
- Security
1.2Purpose
Across the United States, the public safety community responds to routine and emergency situations at a moment’s notice regardless of the severity. These types of situations occur daily in every city and town in the country. The response of the public safety community relies on a communications network. Coordinated response, across agency lines, including multiple disciplines, is necessary to protect the communities and citizens the public safety community is charged to serve. In times of emergency, people look to their public safety officials to act swiftly and correctly, in order to do the things necessary to save lives, help the injured, and restore order. Most disasters will occur without warning. All require a rapid and flawless response. There is no room for error. Whether the event is a fire, natural disaster, vehicular collision, act of terrorism or the apprehension of a suspect, the key piece of that response is the ability to communicate. The communications network spans cities, counties and in some cases state borders. Without reliable and interoperable communications, the safety of our nation’s first responders becomes jeopardized and the ability to perform their critical mission is compromised.
Two-Way Voice radio has been the predominant form of communication employed by public safety to date. With the advent of wireless broadband, we are at the beginning of the next major epoch in mission critical communication for first responders. The future wireless broadband network will offer additional data, video and voice services to further improve the effectiveness and safety of first responders. The report of the Interoperability Board specifies the “Minimum Technical Requirements” necessary to achieve a national interoperable broadband network for our nation’s first responders. As specified in the Spectrum Act, FirstNet will use these recommendations to help develop and maintain the NPSBN, a goal which can only be met with through extensive and on-going cooperation among States and communities.
This work is critically important to all first responders, and the future FirstNet organization that will develop, implement and manage the network. However, we must also remember that technologies are used by people. That component is the human factor. Whatever the technology, it will have to fit in the hands of those who will use it to protect and serve. It will have to be as simple to use as today’s smart phones. It will have to be ruggedized and able to withstand the rigors of public safety use. The applications will need to be reliable and easy to use, whether a first responder is in pursuit of a subject, responding to a medical emergency, directing traffic or reporting to the scene of a disaster. The NPSBN will serve first responders who are part of the “internet generation”. This generation of users grew up with mobile broadband technology; they adapt to it quickly and they understand the enormous capability that it affords. They aren’t as concerned with who builds it as they are with what applications are available. Does it just work? Does it work everywhere? Is it automatic? What is the latest application that will assist me in my job? Will it be as reliable, resilient and predictable in times of emergency as the land mobile radio systems are today? Can I bet my life on it?
The underlying technology is one aspect of achieving interoperability; however, interoperability can only truly be established and preserved over time through vigilant policies, governance, and practices associated with creation, evolution and operation of the network by FirstNet.
1.3Recommended Requirements Summary
In all cases where these recommendations reference specific 3GPP standards (e.g. 3GPP TS 36.101), the intended meaning is that the standard to be applied is contained in Release 9 of the 3GPP standards, or the future evolved equivalent of that standard that applies to future releases.
1.3.13GPP LTE Standards, Interfaces and Guidelines
[1]Hardware and software systems comprising the NPSBN SHALL implement interfaces consistent with Table 2: Standards Implementation Methodology.
[2]Hardware and software systems comprising the NPSBN SHALL support the interfaces enumerated in Table 1: Minimum Interoperable Interfaces.
[3]Hardware and software systems comprising the NPSBN SHALL support management functions.
[4]Hardware and software systems comprising the NPSBN SHALL support APNs defined for PSAN usage.
[5]Hardware and software systems comprising the NPSBN SHALL support nationwide APNs for interoperability.
[6]Hardware and software systems comprising the NPSBN SHALL enable QoS control for PSAN-hosted applications via the 3GPP ‘Rx’ interface.
[7]The NPSBN SHALL support IPv4, IPv6, and IPv4/v6 PDN types defined in 3GPP TS 23.401.
[8]The NPSBN SHALL support IPv4 and/or IPv6 transport for the EPS interfaces enumerated in Table 1: Minimum Interoperable Interfaces, consistent with the FirstNet design.
[9]Any sharing agreement that FirstNet enters into SHALL implement network sharing according to 3GPP TS 23.251 and SHALL NOT impact public safety operations.
[10]The NPSBN SHALL include the capability to collect and convey UE location data to applications using a standardized interface in near real time.
[11]The NPSBN SHALL be capable of providing public safety subscribers with access to the global Internet.
1.3.2User Equipment and Device Management
[12]All User Devices (UEs) deployed on the NPSBN SHALL conform to the 3GPP Release 9 Uu interface enumerated in Table 1: Minimum Interoperable Interfaces.
[13]All User Devices (UEs) deployed on the NPSBN SHALL conform to the 3GPP TS 36.306 UE Radio Access Capabilities, Release 9.
[14]All User Devices (UEs) SHALL support interworking of the device with the USIM/USAT applications on the UICC in accordance with the relevant 3GPP 31.101, 31.102, and 31.111 standards.
[15]All User Devices (UEs) deployed on the NPSBN that support roaming onto commercial LTE networks SHALL operate on any FirstNet roaming partner network using bands supported by the device.
[16]All UEs SHALL support dual IPv4/IPv6 stacks.
1.3.3Testing
[17]Prior to IOT and System-Level testing UEs SHALL have already met 3GPP conformance and certification requirements per an independent conformance testing organization (e.g. PTCRB).
[18]Prior to operational deployment on the NPSBN, UEs SHALL have passed FirstNet-required Interoperability Testing (e.g. using a subset of applicable test cases from CTIA IOT and UICC functional test cases, vendor IOT or similar commercial LTE industry practice).
[19]Prior to operational deployment on the NPSBN, UEs SHALL have passed FirstNet-required UICC functional testing.
[20]Prior to operational deployment on the NPSBN, infrastructure equipment SHALL have passed FirstNet-required Interface Conformance Testing (e.g. testing S1-MME conformance to 3GPP) on the interfaces specified by FirstNet.
[21]Prior to operational deployment on the NPSBN, infrastructure equipment SHALL have passed FirstNet-required Interoperability Testing at a system level as per the specific IOT requirements for the NPSBN.
[22]Infrastructure deployed on the NPSBN SHALL be included in the FirstNet-required FOA process as part of the NPSBN deployment.
1.3.4Evolution
[23]The equipment comprising the NPSBN SHALL provide backwards compatibility of interfaces, from time of deprecation, for a minimum of two full major release/upgrades of the network. This requirement may be waived (i.e., interface obsolescence accelerated) if FirstNet can ascertain from the user community that there are no dependencies on a given interface.
1.3.5Handover and Mobility
[24]The NPSBN SHALL support user mobility across the entire NPSBN (including Opt-out states).
[25]The NPSBN SHALL support S1 and SHALL preferentially support X2 handover between adjacent NPSBN cells (including cells owned by opt-out states) whose proximity supports a handover opportunity.
[26]If roaming between the NPSBN and commercial LTE networks is implemented, the NPSBN SHALL follow GSMA PRD IR.88.
[27]If roaming between the NPSBN and commercial 3GPP 2G/3G networks is implemented, the NPSBN SHALL follow 3GPP TS 23.002 to support roaming into 3GPP 2G/3G networks.
[28]If roaming between the NPSBN and commercial 3GPP2 (eHRPD) networks is implemented, the NPSBN SHALL follow 3GPP 23.402 to support roaming into 3GPP2 (eHRPD) networks.
[29]The NPSBN SHALL support the use of mobile VPN technology to support mobility between the NPSBN and other networks.
1.3.6Prioritization and Quality of Service
[30]The NPSBN SHALL provide the ability for national, regional, and local applications to dynamically change a UE’s prioritization and QoS using the 3GPP ‘Rx’ interface.
[31]The NPSBN SHALL support all 9 QCI classes specified in table 6.1.7 of 3GPP 23.203 v9.11 or future equivalents.
[32]QoS mechanisms in the NPSBN SHALL comply with 3GPP TS 23.203.
[33]The NPSBN SHALL support the usage of all 15 ARP values defined in 3GPP 23.203.
[34]The NPSBN SHALL support the ARP pre-emption capability and vulnerability functions as defined in 3GPP 23.203.
[35]The NPSBN SHALL implement a nationwide scheme for assigning Access Classes to public safety users and secondary users following the 3GPP recommendations in TS 22.011, Section 4.2.
[36]The NPSBN SHALL implement a nationwide scheme for assigning QoS Class Identifier priority to IP network and backhaul priority across the entire NPSBN.
[37]The NPSBN SHALL support the use of industry standard VPN and MVPN technology, while providing priority and Quality of Service for encapsulated applications.
1.3.7Security
[38]The NPSBN SHALL use a nationwide common security profile for user plane and control plane traffic between UEs, eNBs and MMEs, in accordance with 3GPP LTE Network Access Domain protocols. The profile SHALL be based on 3GPP TS 33.401, and will be determined by FirstNet based on a system design and other considerations as it deals with evolving cyber threats. As a minimum, the profile SHALL include specification of ciphering algorithms (for example, use of AES-128 vs. SNOW 3G).
[39]The nationwide common security profile SHALL include ciphering of control plane traffic in order to provide for interoperable cyber protection of the network. Ciphering of user plane traffic is optional and is based on policy decisions that involve FirstNet and user agencies.
[40]To enable interoperable authentication, the USIM and HSS SHALL be capable of supporting the same key derivation functions, such as Milenage per 3GPP TS 35.205, 35.206.
[41]Network Domain Security SHALL be implemented in accordance with 3GPP TS 33.210, which stipulates the use of IPSec to protect IP communication between administrative domains (including all network connections used to interconnect the domains).
[42]The NPSBN SHALL comply with TS 33.310 as the authentication framework for Public Key Infrastructure to authenticate these network interfaces.
[43]In order to ensure secure and interoperable interfaces between the NPSBN and external elements (e.g. all SGi, Rx and Srvs services as shown in Figure 2), these interfaces SHALL be protected with a FirstNet-approved security mechanism.
[44]User Domain Security SHALL be implemented in accordance with 3GPP TS 33.102, TS 31.101, and TS 22.022.
[45]USIM-based applications that require messaging between the USIM and network components SHALL implement Application Domain Security in accordance with 3GPP TS 33.102 and TS 31.111.
[46]In such cases where visibility is required for devices on the NPSBN, the implementations SHALL comply with 3GPP TS 33.102 and TS 22.101.
1.4Recommended Considerations Summary
This section contains recommendations for consideration by the FCC and FirstNet as they develop finalized requirements to be included in RFPs. These recommendations for consideration are distinct from the recommended requirements in the previous sections, in that they are not considered by the Interoperability Board to be in scope as described in Section 3.2.
1.4.13GPP LTE Standards, Interfaces and Guidelines
(1)Hardware and software systems comprising the NPSBN SHOULD support integration of existing network elements via the necessary commercial standards-defined LTE interfaces enumerated in Table 1: Minimum Interoperable Interfaces.